HORIZON 2067 THE PLAN FOR CANADA S CAPITAL CHARTING THE FUTURE OF CANADA S CAPITAL IN THE 21ST CENTURY STEP 1 FOUNDATION PAPER. In association with:

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1 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL CHARTING THE FUTURE OF CANADA S CAPITAL IN THE 21ST CENTURY In association with: STEP 1 FOUNDATION PAPER AUGUST 2011

2 National Capital Commission Horizon 2067: The Plan for Canada s Capital Step 1 - Foundation Paper Plania inc University street, suite 400 Montréal (Québec) H3B 4V3 Phone: (514) Fax: (514) info@plania.com Web site: Ref./N.: 302-P UM

3 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL TABLE OF CONTENTS LIST OF MAPS LIST OF TABLES LISTE OF FIGURES II II II PREAMBULE 1 1. CONTEXT What is a Capital? Canada s Capital The Capital and the Capital Region THE CAPITAL S EVOLUTION OVER TIME Canada s Capital Region prior to Canada s Capital Region from 1867 to Today The Planning of Canada s Capital The Plan for the National Capital The Plan for Canada s Capital The Plan for Canada s Capital TODAY S CAPITAL The Capital: A Place of influence Parliament Hill and the Surrounding Area Official Residences Federal Administration Diplomatic Representations and International Organizations Provincial Administrations and National Organizations National Institutions Analyses and Trends The Capital: A Place to Live The Natural Setting Population and the Economy Urban Form and Land Use Quality of life Planning and Land Use Management 66 I Plania in association with HB Lanarc

4 STEP 1 FOUNDATION PAPER Analyses and Trends The Capital: A Place of Meaning The Symbolism of the National Capital Perceptions of Canada Perceptions of the National Capital Analyses and Trends The Key Issues THE ISSUES AND CHALLENGES 83 APPENDIX 1 CHRONOLOGY OF THE CAPITAL FROM 1780 TO TODAY 89 LIST OF MAPS LIST OF TABLES Map 1 The Canadian State in the Capital 33 Map 2 International Presence 43 Map 3 National Institutions 49 Table 1 Chronology of Canada s Capital, * 16 Table 2 Main Goals and Proposals of the Gréber Plan 22 Table 3 Main Goals and Proposals of the 1988 Plan for Canada s Capital - A Federal Land Use Plan 26 Table 4 Main Goals and Proposals of the 1999 Plan for Canada s Capital 29 Table 5 The Official Residences in Canada s Capital Region 38 Table 6 Major Green and Blue Assets in Canada s Capital Region 55 Table 7 Examples of Partnerships 67 Table 8 Summary of Issues and Challenges 86 LISTE OF FIGURES Figure 1 Planning Hierarchy at the NCC 2 Figure 2 National Interest Land Mass (NILM) 4 Figure 3 Choosing our Future, Objectives by theme 8 Figure 4 The Wheel of Sustainable Mobility 9 Figure 5 St. Petersburg, former capital of Russia 12 Figure 6 The Hague, political capital of the Netherlands 12 Figure 7 Parliament of Canada, Centre Block and Peace Tower, Ottawa 13 Figure 8 National Gallery of Canada 13 Figure 9 National Aboriginal Veterans Monument 13 Figure 10 Women are Persons 13 II Plania in association with HB Lanarc

5 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL Figure 11 The Response: National War Memorial 13 Figure 12 Terry Fox 13 Figure 13 Canadian Museum of Civilization 13 Figure 14 Construction of the Parliament Buildings: Centre Block (around 1865) 15 Figure 15 Urban Growth Figure 16 Urban Growth Figure 17 Urban Growth Figure 18 Urban Growth Today 19 Figure 19 Former Union Station, in 1988 (today, Government of Canada Conference Centre) 23 Figure 20 Greenbelt 23 Figure 21 Canada Day 27 Figure 22 Winterlude 27 Figure 23 Rockcliffe Parkway 27 Figure 24 Leamy Lake Park 27 Figure 25 Chambers Buildings 27 Figure 26 Confederation Boulevard in Ottawa 30 Figure 27 Papa by Hal Ingberg, intersection of Maisonneuve and des Allumettières boulevards in Gatineau 30 Figure 28 Parliamentary Precinct - From left to right, the West Block, the Centre Block and the East Block 35 Figure 29 Supreme Court of Canada 35 Figure 30 Bank of Canada 35 Figure 31 West Block renovation project, Current state (A) and After renovations (B) 36 Figure 32 United States Embassy 45 Figure 33 Canadian Museum of Civilization 47 Figure 35 Canadian War Museum 47 Figure 34 National Gallery of Canada 47 Figure 36 Canadian Museum of Nature 47 Figure 37 NRC, Montreal Road Campus in Ottawa 51 Figure 38 Natural environment of the Capital Region 54 Figure 39 Greenbelt and Gatineau Park 56 Figure 40 Greenbelt 57 Figure 42 Greenbelt, Mer Bleue 57 III Plania in association with HB Lanarc

6 STEP 1 FOUNDATION PAPER Figure 41 Greenbelt, Agriculture Canada 57 Figure 43 Greenbelt pathway 57 Figure 44 Gatineau Park, View from the Pink Lake lookout 58 Figure 46 Cross-country skiing in Gatineau Park 58 Figure 47 Winter camping in Gatineau Park 58 Figure 45 Gatineau Park in the autumn 58 Figure 48 Ottawa River, Deschenes Lake 59 Figure 49 Ottawa River, View from Kitchissippi 59 Figure 50 Ottawa River, View of the rapids 59 Figure 51 Rideau Canal - First locks 60 Figure 52 Rideau Canal skating rink 60 Figure 53 Cyclists on the Parkway Network 61 Figure 54 Cyclists on the Capital Pathway Network 61 Figure 55 Modal Shares by time of day in Canada s Capital Region, Figure 56 Bike-sharing station 64 Figure 57 Rideau Hall Official Residence of the Governor General 65 Figure 58 Reconciliation - The Peacekeeping Monument 71 Figure 59 Canadian Tribute to Human Rights 71 Figure 60 Reflection - Monument to Canadian Aid Workers 71 Figure 61 Canada Day 72 Figure 62 Winterlude 72 Figure 63 Winterlude 72 Figure 64 Tulips in the Capital 72 Figure 65 Mosaïka 72 Figure 66 National Remembrance Day Ceremony 72 Figure 67 Christmas Lights 72 Figure 68 Capital Think Tank Workshop 73 Figure 69 The Maple Leaf 75 Figure 70 Never Give Up! Maurice Richard 75 Figure 71 The Canadian Flag 75 Figure 72 The beaver 75 Figure 73 RCMP - The Canadian Sunset Ceremonies 75 Figure 74 Byward Market in Ottawa 77 IV Plania in association with HB Lanarc

7 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL PREAMBULE The capital is not only the centre of political activity; it is also like the flag and the national anthem the very embodiment of the State. 1 (Translation) The Capital - Past and Present Since 1857, Ottawa has been the seat of the Government of Canada, initially as the capital of the United Province of Canada. Following Confederation in 1867, the city became the capital of the Dominion of Canada. Mirroring the evolution of a country whose borders eventually expanded to include the current ten provinces and three territories, the evolution of the federal government s role in Confederation, and Canada s contributions to the world, the Capital has seen its role and stature change and adapt over the past decades. Today, Canada s Capital Region covers 4,715 square kilometres and is host to a population of over 1.2 million. Incredibly diverse geographically, the Region boasts beautiful vistas and recreational opportunities, fertile agricultural lands on both sides of the Ottawa River, rugged hills to the north and countless lakes, wetlands and streams. The Capital Region includes two large cities, Ottawa and Gatineau, suburbs and rural areas, five smaller municipalities on the Quebec shore that are part of the Regional Municipality of Des Collines-de-l Outaouais, part of the counties of Russell and Beckwith and the Town of Mississippi Mills, on the Ontario shore. About the National Capital Commission Planning Canada s Capital is a unique exercise. Recognizing the importance of building a Capital that reflects the values, goals and pride of Canadian society, Canada s governments have successively entrusted the planning, development and beautification of the Capital and region to dedicated organizations. Since 1958, the National Capital Commission (NCC) is the organization responsible for planning Canada s Capital. Under the National Capital Act, amended in 1985, the NCC must: prepare plans for and assist in the development, conservation and improvement of the National Capital Region in order that the nature and character of the seat of the Government of Canada may be in accordance with its national significance; organize, sponsor or promote such public activities and events in the National Capital Region to enrich the cultural and social fabric of Canada, taking into account the federal character of Canada and the heritage of the people of Canada. 2 1 Centre d analyse stratégique (2008). Analyse - Le statut des villes-capitales : le délicat compromis entre intérêt local et intérêt national. Note de veille, no. 93, p.2 2 National Capital Act (S.R., 1985 ch. N-4), section10 1 Plania in association with HB Lanarc

8 STEP 1 FOUNDATION PAPER Planning of the Capital of Canada The Plan for Canada s Capital of 1999 is the most important of all plans prepared by the NCC: it represents the federal government s main policy statement on development in Canada s Capital Region. The plan sets a short and long-term vision and general policies for the development and conservation of the Capital and its region. The Plan for Canada s Capital outlines the principles and goals that provide the framework for all NCC plans, whether Master Plans (such as those for Gatineau Park and the Greenbelt); Sector Plans (such as the Capital Core Area Plan); or Area Plans (such as the LeBreton Flats Area Plan). Source: NCC, 2011 Figure 1 Planning Hierarchy at the NCC The plan also guides the management and stewardship of NCC assets, as well as marketing, communications, commemoration and representation strategies to promote and animate the Capital. 2 Plania in association with HB Lanarc

9 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL In addition to the Plan for Canada s Capital and the plans that are linked to it, the NCC has two important tools to contribute to the beauty and quality of development in the Capital: The National Interest Land Mass (NILM) Management Plan (figure 2). The NCC prepares and administers this plan which oversees the lands that are deemed essential to support the long-term character of Canada s Capital, as a political, symbolic, cultural and administrative centre. The NILM designation constitutes a formal expression of the federal government s interest in the development of the Capital. The federal government mainly through the NCC and its predecessors has assembled these lands over the past century. The NILM includes national shrines, river shorelines and parkways, Confederation Boulevard, the Greenbelt and Gatineau Park. Some private properties, for instance within the limits of Gatineau Park, are also part of the NILM. NILM lands represent approximately 11% of the land mass of the region, including NCC and other federal lands. The NCC guides and controls the use and physical development of federal lands through the Federal Land Use, Transaction and Design Approval process. This process seeks to coordinate and promote excellence in design, site development, heritage preservation, archaeological treasures and cultural landscapes. The NCC also reviews and approves projects, plans and the use and disposal of the lands of federal organizations to ensure that all federal lands are planned, designed and managed in a manner worthy of the Capital. 3 Plania in association with HB Lanarc

10 STEP 1 FOUNDATION PAPER Source: NCC, 2010 Figure 2 National Interest Land Mass (NILM) 4 Plania in association with HB Lanarc

11 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL Review of the 1999 Plan for Canada s Capital - Charting the Future Toward 2067 At its founding, the NCC was mandated to implement the 1950 Plan for the National Capital prepared by Jacques Gréber which contained directions that guided development for a number of decades. In 1988, the NCC published its first land-use plan as an organization, the Plan for Canada s Capital: A Federal Land Use Plan. Ten years later, a renewed vision of the capital led to the 1999 Plan for Canada s Capital. The NCC is beginning an important new chapter in planning for the future of Canada s Capital Region with a review of the 1999 Plan. The new plan must provide a vision capable of making our capital a source of pride and inspiration for all Canadians; a beautiful and vibrant Capital that will inspire Canadians; a world-class Capital that will reflect Canadian know-how and excellence and our collective aspirations. The 21st Century has been called the Century of Sustainability, 3 the time when humanity must assemble its greatest ingenuity and make careful choices to address our most profound challenges. Nowhere is this potential for problem solving and ingenuity more dramatically poised than in a country s capital. Sustainable development principles, development that meets the needs of the present without compromising the ability of future generations to meet their own needs, were taken into account in the 1999 Plan for Canada s Capital. The new Plan for Canada s Capital will provide guidance for NCC and federal lands within the Capital Region. It will also address issues for the region as a whole: the plan review will be an opportunity to further develop and pursue partnerships since collaboration is key to success. In order to chart the future of the Capital until 2067, the new Plan for Canada s Capital will serve as: a guide by defining the strategies that will transform the vision of a dream into reality; a beacon for the NCC and the federal government to make the Capital a place of pride and national significance, and; a reference on which the regional and municipal stakeholders will rely to showcase the Capital. 3 This term has been used by (among others) Professor Richard Levine, founder of the Center for Sustainable Cities (CSC) at the University of Kentucky. 5 Plania in association with HB Lanarc

12 STEP 1 FOUNDATION PAPER The review process is divided into five steps: 1. Spring 2011 The Capital s challenges 2. Autumn 2011 Vision statement for the Capital in the 21st century 3. Spring 2012 Spatial organization and planning principles 4. Autumn 2012 Plan policies and review of the National Interest Land Mass 5. Spring 2013 Consolidation and approval of the Plan Step 1 is focused on examining facts and trends that impact the Capital and its region and identifying future issues and challenges: this document reports on these. Review Background In the past decade, the planning context in the Capital Region and the country has changed significantly: Toward a renewed mandate. In 2006, the NCC s mandate was reviewed in terms of its functions, its funding and operating costs, and its governance. Since then, the NCC has taken a number of measures to ensure greater transparency in its decision-making process. Leadership in sustainable and active transportation. The NCC now plays a more important role in the coordination of interprovincial transportation planning, and in increasingly linking improved quality of life and the creation of a more sustainable Capital Region through transportation planning. Governance changes. The amalgamation of municipalities on both sides of the Ottawa River resulted in two new cities, Ottawa (2001) and Gatineau (2002), and the dissolution of the Regional Municipality of Ottawa-Carleton and the Communauté urbaine de l Outaouais. Continued urban growth. Canada s Capital Region continues to grow at a rapid pace. Mounting pressure is placed on natural environments, infrastructure rehabilitation needs, and new transportation demands associated with growth. A real property portfolio and infrastructure nearing the end of their life cycle. Built in the 1950s and 60s, a number of federal infrastructure and buildings have reached the end of their life cycle and require extensive work. Changes in the role and size of the federal public administration. Federal employment in Canada s Capital Region has been rising since 1998, reaching a total of nearly 134,000 jobs. 4 4 Statistics Canada (2011). Federal Government Employment, Wages and Salaries, September 2010, employees 6 Plania in association with HB Lanarc

13 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL Evaluation of the 1999 Plan for Canada s Capital As the Plan reached its 10th anniversary, an evaluation conducted as part of the NCC s planning cycle found the following, to be considered in the review of this Plan: 5 Plan a model Capital for the future Showcase the Capital s assets Reflect the changing face of Canada in the Capital Reinforce the importance of sustainable development Develop a sensitive and adapted approach to ensure safety in the Capital Cooperate to succeed Welcome the 21st century with confidence Develop a Capital that stands out in terms of quality, aesthetics, standards and environment. Emphasize ways to showcase the Capital, its assets and the federal government s presence. Find ways to make the Capital open, welcoming, meaningful, and accessible to all Canadians. Place more emphasis on green linkages, shorelines, and navigable waterways, including protection from erosion and pollution. Have concern for safety without reducing accessibility or diminishing the quality of the public domain. Collaborate with various governments, organizations and departments, and seek to harmonize their visions. Take advantage of new means of communications for consultations, social networking, and creation, and for sharing experiences «live» from the Capital. Toward a Sustainable Capital Choosing our Future The new Plan for Canada s Capital will rely on earlier visions in order to reinforce the principles of sustainable development for future generations. The NCC participates in a number of sustainable development initiatives and their results will contribute to discussions about the plan s review. The City of Ottawa, the City of Gatineau and the NCC have partnered to develop a long-term plan for a sustainable, resilient and liveable region Choosing our Future. The three partners have agreed on the principles and goals that will guide the work (figure 3): Long-term thinking. Act locally, think globally. Respect the Planet (One Planet). Design and implement integrated systems that achieve multiple objectives. Value diversity and creativity. Learn through cooperation. 5 Fleishman-Hillard, NCC (2008) Plan for Canada s Capital Evaluation - Final Report 7 Plania in association with HB Lanarc

14 STEP 1 FOUNDATION PAPER This initiative is scheduled to be completed by December A plan for action will be developed including three plans: sustainability and resilience; regional energy and emissions; risk prevention and mitigation. 6 Figure 3 Choosing our Future, Objectives by theme 6 Choosing our Future, Update, 8 Plania in association with HB Lanarc

15 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL Sustainable Transportation and Mobility NCC is also a partner involved in sustainable transportation and mobility initiatives such as: A Strategic Transportation Initiative for the National Capital Region, the Interprovincial Transit Strategy, the Interprovincial Crossings Environmental Assessment and the Bike Sharing initiative. The outcomes of these initiatives will be taken into account in the review of the Plan for Canada s Capital. In November 2010, NCC in partnership with ACT Canada (Association for Commuter Transportation of Canada) convened participants to a Sustainable Mobility Summit. Figure 4 illustrates the main components of a sustainable mobility strategy as developed during the course of this Summit. * Source: NCC, Association for Commuter Transportation of Canada (2010) * TDM Strategies - Transportation Demand Management Strategies Figure 4 The Wheel of Sustainable Mobility 9 Plania in association with HB Lanarc

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17 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL 1. CONTEXT 1.1. WHAT IS A CAPITAL? A capital-city is a complex organism. It is a country s window on the world; the symbolic embodiment of its culture and of how its citizens live; an administrative centre; a tourism destination; a centre of municipal and regional services; a place to live; and much more. A capital-city is thus faced with many diverse challenges. The word capital most commonly refers to the seat of a State s government and its highest authorities. As a centre of political activity, a capital is also the centre of diplomatic activity. A national capital plays a symbolic role. It is a mirror of the country, presenting and representing the country s history, values and accomplishments. People expect to recognize a part of themselves in their capital, they want to feel welcome, and they want to feel they belong there. One way in which identity is connected to a particular place is by feeling that you belong to that place. It s a place in which you feel comfortable, or at home, because part of how you define yourself is symbolized by certain qualities of that place. 7 A national capital is also a beacon both for the country and for the world, a source of pride that one turns to. People expect their national capital to be host to the best institutions, the greatest buildings, the most beautiful sites, to attest to the talent, creativity, and innovation of the country. People expect their capital to render honour to the country s contributions and to its place in the world; they expect their capital to host exceptional events, commemorations and celebrations. In exceptional times and moments, people turn to the capital: they gather there to express their sympathy, to make their voices heard, to render thanks, and to find comfort in one another. Capitals can be differentiated by the scale on which they reign: national versus provincial capitals, for example. Capitals can also be categorized based on the nature of their functions, 8 such as political (The Hague (figure 6), Bonn) and multi-purpose capitals (Paris, London, Tokyo). Lastly, some capitals retain this identity even after they have lost their official standing as the capital (St. Petersburg (figure 5), Rio de Janeiro). Some capitals may be characterized differently based on the type of political regime. For example, in federal countries in which State power is divided among several levels of government federal, provincial, territorial, regional, local the nation s capital is called the federal capital to distinguish it from those of the country s constituent provinces and territories. 7 Rose, Gillian (1995). Places and Identity: A Sense of Place, quoted in Osborne, Brian S. (2001). Landscapes, Memory, Monuments, and Commemoration - Putting Identity in its Place, Draft, p. 4 8 Peter Hall (2006). Seven Types of Capital City in Planning Twentieth Century Capital Cities (2006) edited by David L.A. Gordon 11 Plania in association with HB Lanarc

18 STEP 1 FOUNDATION PAPER Source: Encyclopaedia Britannica.com, 2011 Figure 5 St. Petersburg, former capital of Russia Source: Netherlands Board of Tourism, 2011 Figure 6 The Hague, political capital of the Netherlands In the early 21st century, the concept of capital has been extended to designate cities that play a leadership role either globally or in a particular area of activity, such as New York City. 12 Plania in association with HB Lanarc

19 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL 1.2. CANADA S CAPITAL Ottawa is the national capital of a federal state: thirteen other Canadian cities perform the role of provincial or territorial capital. The Capital of Canada is a political capital: it is defined by the presence of the seat of the Government of Canada, the diplomatic activities this entails, and the public service. These activities are dominant in the region s economy. In this respect, the future of the Capital and of its region is closely tied to the future of the State, i.e. the role of government and its place in Canadian society. When we think of Canada s Capital, images of Parliament Hill, the Rideau Canal, historic monuments and buildings, national museums, and great parks may come to mind. We might also think of government and politics, and be reminded of people who have made a special contribution like when we pause for Remembrance Day, or of defining moments for Canada. Through the image it projects, Canada s Capital helps strengthen national values by fostering a real sense of belonging Sources (figures 7 to 13) : NCC, 2010 Figure 7 Figure 8 Figure 9 Figure 10 Figure 11 Figure 12 Figure 13 Parliament of Canada, Centre Block and Peace Tower, Ottawa National Gallery of Canada National Aboriginal Veterans Monument Women are Persons The Response: National War Memorial Terry Fox Canadian Museum of Civilization 13 Plania in association with HB Lanarc

20 STEP 1 FOUNDATION PAPER 1.3. THE CAPITAL AND THE CAPITAL REGION Canada s Capital Region is unique in that it includes a vast territory on both sides of the Ottawa River which is the border between two provinces, Ontario and Quebec. During the federal-provincial constitutional conference of 1969, Canada s premiers formally recognized that the cities of Ottawa and Hull (known as Gatineau today) and their surrounding areas formed the National Capital Region. The provinces of Ontario and Quebec retained jurisdiction over their respective territories. The capital and its region are distinct entities that exert reciprocal influences on each other. The capital contributes to the growth and life of the region through the presence of the public service and investments in facilities and institutions of national scope. The region that hosts the capital contributes natural assets, history, people and living areas that give the capital its distinctive character. Capital and city are, however, entities with differences. They may share a territory and a people in it, not to mention ambitions and problems in common, but capital cities nonetheless have had and continue to have two trajectories, a city one and a capital one. ( ) In some sense, a capital is an idea imposed on territory; and a city a territory in search of an idea. 9 Canada s Capital Region has a dual personality, that of the capital and that of the host region, which leads to the search for balance between national representation and commemoration, the national interest on the one hand, and local interests of the host region on the other. 9 Taylor, John and Andrew, Caroline (2006). Cities and Capitals: Sites of Meaning and Arenas of Contention. Congress of the Social Sciences. York University. Draft. P Plania in association with HB Lanarc

21 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL 2. THE CAPITAL S EVOLUTION OVER TIME 2.1. CANADA S CAPITAL REGION PRIOR TO 1867 As we know it today, the Capital reflects Canada s history and the vision of the country of previous decision makers as it evolved over time. In this chapter, an overview of the key changes that have had an impact on Canada, the Capital and the Region are reviewed to provide a better understanding of how the Capital has evolved. Canada s Capital area was first inhabited by the Algonquin Nation. Archaeological findings have shown that Algonquin inhabited the Ottawa Valley at least 8,000 years before European explorers set foot there. The Algonquin called the river the Kitchissippi (Great River) in recognition of the important role played by the river as a trade route. When European explorers later traveled these same waters in search of furs, they called the area Ottawa after the local Algonquin Nation of Adawa. Discussions regarding the Capital s location were first raised in Quebec City was then capital of Lower Canada while Upper Canada s capital was first Newark (known today as Niagara-on-the-Lake) in 1791, then York (Toronto) in Discussions about the capital s location were again raised with the adoption of the Act of Union in A complicated process marked by numerous debates between Members of Parliament and successive relocations (table 1) eventually led Queen Victoria to choose Ottawa as the seat of the Government of the United Province of Canada, in A large-scale project both as a construction project and a financial undertaking, the construction of the Parliament Buildings started in 1860 and was completed by 1866 at the eve of Confederation (figure 14). In 1867, Ottawa became the seat of the Government of the Dominion of Canada. Source: City of Ottawa, 2010 Figure 14 Construction of the Parliament Buildings: Centre Block (around 1865) 15 Plania in association with HB Lanarc

22 STEP 1 FOUNDATION PAPER Table 1 Chronology of Canada s Capital, * 1841 The Capital of the United Province of Canada is established in Kingston The Capital moves to Montreal A mob burns the Parliament Buildings in Montreal. The Capital moves to Toronto. The Capital is located alternately in Toronto and Quebec City, starting with the latter The Capital moves to Toronto The Legislative Assembly chooses Quebec City as the permanent capital but the Legislative Council refuses to provide the necessary funding. The Legislative Assembly submits the matter to the Queen The Queen confirms Ottawa as the Capital A third motion against the Queen s choice is rejected by the Legislative Assembly. Parliament meets temporarily in Quebec City while the Parliament Buildings are under construction in Ottawa. At the Charlottetown Conference, Ottawa is again chosen as the Capital of the New Federation The Government moves to Ottawa Confederation unites in a Federal Union the United Province of Canada, Nova Scotia and New Brunswick and Ottawa becomes the seat of the Government of the Dominion of Canada. Source: NCC, 2010 * Note: A detailed chronology of the Capital from 1780 to today is included in Appendix CANADA S CAPITAL REGION FROM 1867 TO TODAY Around 1857, the city of Ottawa had approximately 16,000 residents 10 and across the Ottawa River in the much smaller community of Hull, Quebec, lived around 2,800 people. 11 At the time, the region s economy was based on natural resources. With the completion of the Rideau Canal, the region became the centre for lumber milling and square cut timber. 12 The fertile lands of the Ottawa Valley supported a strong agricultural economy. One of the first tangible impacts of the role played by the federal government in the Capital was the purchase by the government of 466 acres on the edge of the city of Ottawa for the Central Experimental Farm. The federal government wanted to support agricultural development in the country by developing the best livestock breeds, plant varieties, and farming methods for the different regions in Canada NCC (1999). Plan for Canada s Capital. 11 Museum of Learning (2010). 12 City of Ottawa, City of Gatineau and NCC (2009). Choosing our Future Foundation Paper Series- Economic Prosperity 13 Ibid. 16 Plania in association with HB Lanarc

23 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL The region was devastated in 1900 by the great Hull-Ottawa fire when the fire spread across the wooden Chaudières Bridge. 14 The subsequent rebuilding coincided with tremendous growth in the civil service; between 1900 and 1910, the civil service in Ottawa grew by almost three-fold, to a total of 3,219 employees. 15 New federal institutions followed: the National Research Council, the National Gallery, the National Archives, the first museums. The growing presence of the civil service gradually changed Ottawa s profile. Following the Second World War, the population of Ottawa neared 150, while in Hull the population was approximately 77, The postwar growth could be seen in infrastructure and economic development throughout the region as well as in the growing civil service. By the 1970s, the civil service was the economic driver and led to the development of the high-tech industry which included some 40 firms, mostly Canadian-owned. 18 By 1979, the population of the city of Ottawa had reached 300, while across the river in Hull and the surrounding municipalities there were about 170,000 people. 20 In 2001, the city of Ottawa amalgamated with the seven surrounding cities and townships. Likewise, in 2002, the cities of Hull, Gatineau, Aylmer, Buckingham and Masson-Angers were amalgamated into one city the city of Gatineau. By 2006, the population of Ottawa was over 812,000 and that of Gatineau, over 242,000 people. 21 The urban area of the capital region has greatly expanded in the last 150 years (figures 15, 16, 17, and 18); evolving transportation modes were a key factor - from buggies to trains and streetcars, then trolley buses and buses, and finally cars. As the region expanded, crossing the Ottawa River which separates Ottawa and Gatineau required the construction of bridges: the Chaudières Bridge ( ) was built to link Gatineau to the Rideau Canal construction site; the Alexandra Bridge ( ) was built by the Canadian Pacific Railway Company; the Champlain Bridge (1928) was completed by the Federal District Commission; the Macdonald-Cartier Bridge (1963) was built through a collaboration between the federal and provincial governments; and finally, the most recent bridge, Portage Bridge (1973) was built by the NCC Report of the Ottawa and Hull Fire Relief Fund (1900). Ottawa. 15 Bytown Museum (2010). Ottawa History Ibid. 17 Institut de la statistique du Québec (2006). Demographic evolution of the 10 largest cities in Quebec based on their current limits. Census of Canada from 1871 to Hull and the surrounding areas form the current city of Gatineau 18 Bytown Museum (2010). Ottawa History, Op. cit. 19 Bytown Museum (2010). Ottawa History, Op. cit. 20 Institut de la statistique du Québec (2006). Op. cit. 21 Statistics Canada (2006) Census. 22 Ibid. 17 Plania in association with HB Lanarc

24 STEP 1 FOUNDATION PAPER Since the 1980s, growth on the Ottawa side is no longer contained within the Greenbelt 23 but has expanded beyond in suburban areas. In Gatineau, urban growth has been contained within the urban boundary and prohibited in the permanent agricultural zone. Source: NCC, 2010 Figure 15 Urban Growth 1876 Source: NCC, 2010 Figure 16 Urban Growth The Greenbelt is composed of properties mostly belonging to the federal government, including the Central Experimental Farm. The Greenbelt was assembled by the NCC starting in 1958 in order to prevent urban sprawl and to preserve natural areas. 18 Plania in association with HB Lanarc

25 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL Source: NCC, 2010 Figure 17 Urban Growth 1956 Source: NCC, 2010 Figure 18 Urban Growth Today 19 Plania in association with HB Lanarc

26 STEP 1 FOUNDATION PAPER 2.3. THE PLANNING OF CANADA S CAPITAL The Plan for the National Capital Very early in Canada s history, beautifying the capital was identified as an essential activity to represent the country, its attributes and its accomplishments. In 1893, future Prime Minister Wilfrid Laurier promised to make Ottawa an attractive city and the centre of the country s intellectual development, the Washington of the North. With this in mind in 1903 Frederick G. Todd, a landscape architect, conceived a concept for the capital as a region defined by a network of parks. In 1915, the Report of the Federal Plan Commission advanced proposals designed to rationalize the railway network, create parks including the creation of a capital park on the Quebec side of the river, Gatineau Park. Prime Minister Mackenzie King, while asking Parliament for funds to redevelop the city s core in 1928, asked his fellow Members of Parliament to join him in a nonpartisan recognition of the importance of beautifying Canada s Capital. Landscape design for the capital was also a key component of the Federal District Commission s mandate as of The aspirations and visions that have guided the planning process of the Capital, as we know it today, are the results of three major planning endeavours: the Plan for the National Capital of 1950, known as the Gréber Plan, prepared for the Federal District Commission; the NCC Federal Land Use Plan of 1988; and the NCC 1999 Plan for Canada s Capital. Historical Background Following the Second World War, the Capital faced three main issues: Weak outreach and limited appeal. In 1945, with the exception of Parliament Hill, the Capital had little appeal and offered few major points of interest. Despite its status as a capital, it did not shine beyond the limits of the region. Need to address land use planning issues. The postwar Capital Core was dominated by the railways. Heavy industry was located along the shores of the Ottawa River, central neighbourhoods were dilapidated, green spaces and public meeting spaces were lacking. Urgent need for space to house the civil service. To house the increasing number of public servants from 1939 to 1945, temporary buildings were used for administrative purposes in the Capital Core area. The government mandated Jacques Gréber to prepare a plan for the Capital so that this capital would proudly rise to the level and greatness of the national and international role which this new world power, named Canada, a country of the future, is called upon to play in not too distant morrows. 24 This time, the area was to include not only the administrative core but extend on both sides of the Ottawa River (Ottawa and Hull) in order that Ottawa-Hull may become a modern and attractive capital. 24 Gréber, Jacques (1950). The Plan for the National Capital. P Plania in association with HB Lanarc

27 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL Main Goals and Proposals Gréber first outlined the scope of the project. He made the distinction between planning the development of the municipalities which form the Capital region and planning of the Capital. At the time, there was very little urban planning at the local level. He dedicated the planning of the National Capital to the memory of Canadians who lost their lives during the Second World War and set two goals: To plan the urban expansion of the Capital looking forward for at least two generations without compromising future ones. To recognize the Capital Region as a place to live and work and determine how to address population growth. Within the urban core, the concept called for the reorganization of the railway and road networks, urban renewal, creation of self-contained neighbourhoods, distribution and decentralization of public buildings, implementation of a network of open spaces and the creation of green areas. The Gréber Plan proposed the construction of national institutions (museums, theatres, art galleries, etc.), the revitalization of the LeBreton Flats neighbourhood, requalification of the central core, and the relocation of a portion of the population to the periphery of the centre. The concept developed by Gréber proposed a road hierarchy to facilitate circulation within the region, to restrain urban sprawl, to maintain the character of the rural areas by creating an urban core delimited by a Greenbelt and to enhance riverbanks of particular interest. Table 2 below presents an overview of the main goals and proposals included in the Gréber Plan. 21 Plania in association with HB Lanarc

28 STEP 1 FOUNDATION PAPER Table 2 Main Goals and Proposals of the Gréber Plan Main Goals Main Proposals Relocation of the railway network and heavy industry outside the Core Area Reorganization of the road network and creation of a scenic parkway network Creation of a rural belt, the Greenbelt, to contain urban growth Creation of a network of parks, green spaces, pathways and open spaces Decentralization of government buildings Removal of the East-West railways cutting through Ottawa s core Creation of a railway belt line at the outskirts of the Core Area Relocation of heavy industry outside residential neighbourhoods Relocation of the Ottawa and Hull train stations outside the Core Area Construction of a freight central terminal and its yards Development of a link between railway lines on the North and South shores Creation of a road network composed of interurban, main and secondary arteries and urban parkways Development of urban boulevards, mainly along the dismantled railway lines Construction of two new bridges across the Ottawa River Creation of a 4 km Greenbelt surrounding the urban core Development of the urban core providing for up to a maximum population of 500,000 persons Definition of variable density zones (12 to 40 persons/ha) and concentration of higher densities in the Capital Core and along important urban boulevards Development of communities with a population of 25,000 to 40,000 residents, each one subdivided into self-contained neighbourhood units of 5,000 to 7,000 persons (access to facilities, retail and services) Creation of green corridors linking communities Once the 500,000 person threshold has been reached, development of satellite cities outside the Greenbelt Extension of Gatineau Park into the Capital Core Area, in Hull Creation of an urban pathway network within the limits of the Greenbelt, along the rivers (Ottawa, Rideau, etc.), the Rideau Canal and important urban boulevards Development of open spaces in the Capital Core Area Concentration of important government, parliamentary and diplomatic institutional buildings in downtown Ottawa and around Parliament Hill Creation of four peripheral employment nodes to accommodate research laboratories and secondary administrative buildings 22 Plania in association with HB Lanarc

29 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL From Plan to Reality ( ) The Gréber Plan has played a crucial role in the Capital s history. Many important proposals were totally or partially implemented, such as: Infrastructure and urban renewal: dismantling of railway lines in downtown Ottawa and relocation of railway lines, heavy industry and the train station to the periphery; these projects allowed for the conversion of the old Union Station into a conference centre (figure 19) and the redevelopment of central spaces formerly occupied by the railway yards (hotel and shopping centre). Road network projects: development on the railway tracks right-of-way of a network of scenic parkways and recreational pathways along the Ottawa River and Rideau Canal, and in Gatineau Park; construction of a new bridge across Rideau Canal and of a highway through the city (Queensway) on an abandoned railway corridor. Beautification and planning: expansion of Gatineau Park; creation of a vast Greenbelt (figure 20) in the southern part of Ottawa. Redevelopment of the Capital Core: relocation of several government offices and laboratories within the four employment nodes at the periphery. Source: Canada s Historic Places, 2011 Figure 19 Former Union Station, in 1988 (today, Government of Canada Conference Centre) Source: NCC, 2010 Figure 20 Greenbelt 23 Plania in association with HB Lanarc

30 STEP 1 FOUNDATION PAPER The Plan for Canada s Capital Historical Background In the late 1960s, many changes occurred in the Capital and these had a significant impact on the planning of the Capital as set forth in the 1988 Plan for Canada s Capital. These changes included: The official recognition of the Capital Region of Canada. A federal -provincial constitutional conference in February 1969 modified the National Capital Region s boundaries integrating the cities of Ottawa, Hull and their surroundings. The recognition of the two official languages, English and French. Under the Official Languages Act, federal institutions located in the National Capital Region must ensure that the public can communicate with them either in English or French. A new rule for the distribution of federal employment. In compliance with the new Capital Region, the federal government introduced a rule by which the distribution of federal employment on both sides of the Ottawa River should be representative of the demographic distribution in the National Capital Region. Thus, federal buildings were built on the Quebec side of the Ottawa River (Terrasses de la Chaudière and Place du Portage I to IV). New provincial and municipal buildings were built nearby. The creation of two regional bodies with planning mandates. The provincial governments on both sides of the Ottawa River created regional bodies: the Regional Municipality of Ottawa-Carleton, in Ontario, and the Outaouais Regional Community, in Quebec, both with planning mandates which would have an impact on NCC activities in this regard. A first national museum on the Quebec side. The Canadian Museum of Civilization was built on the Quebec shore of the Ottawa River, facing Parliament. A new mandate for NCC. In accordance with the new powers given to NCC under the 1985 amendment to the National Capital Act, the new NCC mandate included: - Making the Capital into Canada s meeting place by encouraging the active participation of Canadians in the evolution of their capital; - Using the Capital to communicate Canada to Canadians in order to assist in the development and highlighting of Canadian national identity; and - Safeguarding and preserving the Capital for future generations. 25 At the end of the 1980s, most of the proposals of the Gréber Plan had been implemented. The new plan would thus have to address the changing political context and provide for planning and development of elements of national interest in the Capital. 25 NCC (1988). Plan for Canada s Capital - A Federal Land Use Plan. P Plania in association with HB Lanarc

31 HORIZON 2067 THE PLAN FOR CANADA S CAPITAL Main Goals and Proposals The 1988 Plan focused on elements that contribute to making the Capital a national symbol. The vision for the Plan was: (...) based on the premise that the Capital needs to play a significant role in the life of the nation and that, in performing that role, it will help to develop an new spirit of reconciliation and consensus in the country as a whole. 26 The spatial organization concept proposed to transform Capital public spaces into Capital stages, to improve tourist attractions and access to the Capital, and to encourage collaboration among planning bodies in the Capital Region. The concept recognized the importance of Confederation Boulevard as the main location for political, judicial and cultural institutions, and commemorations. Emphasis was placed on the use of public lands and public programming rather than on purchasing or developing public lands. The proposed orientations for the 1988 Plan for Canada s Capital included: Give priority to those functions of the Capital that are unique to the NCC s national mandate that is, the political, cultural and administrative functions. 27 Enhance the presence of the provinces and territories and of the international community and to preserve the natural environment. Develop the Capital as a symbol for all Canadians that reflects its roles as a political decision-making centre, a showcase for national culture and an administrative centre for the federal government. Implement visitor facilities and services so that a visit to the Capital may be memorable and exceptional. Consolidate the National Interest Land Mass by setting up a programme for purchasing, exchanging and transferring properties in support of the Plan s priorities. Table 3 below presents an overview of the main goals and proposals of the 1988 Plan for Canada s Capital. 26 Ibid., p NCC (1988). Plan for Canada s Capital - A Federal Land Use Plan. P Plania in association with HB Lanarc

32 STEP 1 FOUNDATION PAPER Table 3 Main Goals and Proposals of the 1988 Plan for Canada s Capital - A Federal Land Use Plan Main Goals Consolidation of the federal presence in the Capital Enhancement of the Capital s green image and greater accessibility to riverbanks Enhance the quality and appearance of arrival points and scenic entries to the Capital Focus on the Capital as a symbol Main Proposals Give priority to political, administrative and cultural institutions and events on federal lands in the Capital Core Distribute the federal public service in the Ontario and Quebec parts of the region according to a proportion to be re-examined periodically Establish cultural, national and international institutions in the Capital Core area in high-profile locations along the Parkway Network, in the Greenbelt and in the southern part of Gatineau Park Consolidate the peripheral federal nodes by integrating complementary uses to office functions Establish a conservation and park network Pursue and enhance the networks of recreational pathways and parkways Ensure shore lands are reserved for public access Consolidate the multifunctional network of scenic routes for recreational purposes and enhance attractions, institutions, facilities and events of national scope Enhance the quality and appearance of main points of arrivals and scenic entries to the Capital Develop urban design policies to enhance the Capital s image and to contribute to a pleasant and stimulating urban environment From Plan to Reality ( ) The implementation of the 1988 Plan for Canada s Capital left its mark on the Capital mainly through: Celebrations and national outreach. Organization of Canada Day celebrations (figure 21) then of Winterlude (figure 22); inauguration of the Christmas Lights in Canada program; Destination 88 and 89 partnerships to promote tourism; development of several products and services for visitors. Restoration and beautification. Opening of Rockcliffe and Aviation parkways (figure 23); land acquisition in Meech Creek Valley; restoration of large urban parks: Major s Hill, Leamy Lake (figure 24) and Confederation. Targeted actions to enhance the built heritage. Redevelopment of public and private heritage buildings along Sussex Drive; restoration of the Chambers buildings (figure 25) and of the Maplelawn historical site. Major infrastructure works. Rehabilitation of the Champlain Bridge; development of phase one of Confederation Boulevard from Alexandra bridge to Chateau Laurier and the initial phase of the Quebec section, from the Canadian Museum of Civilization to Alexandra Bridge. 26 Plania in association with HB Lanarc